Incarceration and Crime by John Mackinnon and Chris Jackson

Rockies Snapshot: Incarceration and Crime By John MacKinnon and Chris Jackson

The 2009 Colorado College State of the Rockies Report Card the relative chaos of the Old West has been replaced Justice and Prisons in the Rockies by a more industrialized system. As large numbers of criminals are incarcerated, entire communities, such as On the afternoon of June 24, 1896, Butch Cañon City, Colorado, specialize in prison employment. Cassidy and three members of his “Wild Bunch” entered Some of the nation’s most nefarious criminals, including the San Miguel County Bank in Telluride, Colorado, Ted Kaczynski (the “Unabomber”) and former Gambino drew pistols on the bank teller, robbed the bank of nearly crime family underboss “Sammy the Bull” Gravano, $20,000, and then fled town on horseback. Sheriff James as well as many convicted international terrorists, are A. Beattie and a posse took up the chase but lost the gang housed in the supermax prison in Florence, Colorado, when they switched their horses for fresh mounts at a (Administrative Maximum Unit Prison-ADX) the so- pre-arranged location in the nearby Mancos Mountains. called “Alcatraz of the Rockies.” Even as the general Adding insult to the injury, it was later discovered that tenor of justice in the West has changed, vestiges of the gang had bribed Telluride Town Marshall Jim Clark frontier justice remain; just as the Pinkerton Agency was to “be out of town” the day of the robbery. The Telluride hired to assist state lawmen, today private corrections heist was the first of many bank robberies for Cassidy and companies are contracted to run private prisons that his cohorts, whose prolific criminal careers included bank house state criminals. Also reminiscent of the Old and train robberies in each of the eight Rocky Mountain West are the tactics of Sheriff Joe Arpaio of Maricopa states. Not every job went as smoothly as the San Miguel County, Arizona, the self-titled “toughest Sheriff in County Bank, however, and the gang of outlaws did not America,” whose policies have included chain gangs at always elude pursuing lawmen or the famed Pinkerton tent prisons and assembling posses for midnight raids private security firm that had been hired to track down to round up suspected illegal immigrants. In general outlaw gangs in the West. During their crime spree in the however, the Rockies region reflects the national trend of late 1800’s and early 1900’s, members of the Wild Bunch high incarceration rates and must similarly deal with its were jailed in the Idaho, New Mexico, and Utah state ramifications. prisons, and Cassidy himself was convicted as a horse thief and sentenced to a two-year term in the Wyoming Trends in Crime and Incarceration State Prison. But prison was not always the outcome of scrapes with lawmen and Pinkerton agents—numerous In early 2008, The Pew Center on the States gang members were killed in shootouts, and at least one reported that the U.S. prison population exceeded 2.3 captured outlaw was sentenced to death and hanged. million, meaning that more than 1 out of every 100 The exploits of the Wild Bunch and other U.S. adults is in prison. Of those 2.3 million inmates, outlaw gangs have since been immortalized as relics 1.6 million are in state and federal prisons for long-term of a romanticized period of “frontier justice.” Today, confinement (typically over one year), and the remaining

About the authors: John MacKinnon (Colorado College ‘06) was a 2008 researcher for the State of the Rockies Project and © Arielle Gross ‘12 currently attends law school at Lewis and Clark College. Chris Jackson (Colorado College ‘06) was the 2006-07 and 2007- 08 Rockies Program Coordinator. 700,000 are in local jails (serving shorter sentences, high crime rate translates to more arrests and jail terms, usually under one year). The U.S. has by far both the but that alone cannot explain the high prison population highest incarcerated population and highest incarceration in the U.S. rate in the world.1 The European nations with the next A second major contributor to high jail highest prison rates are the Russian Federation followed populations is the relatively harsh sentences that have by Belarus, Georgia, and the Ukraine. In terms of total become the standard in the U.S. As argued by one inmates, the United States has a larger prison population researcher: than that of the 26 largest European nations combined.2 There are myriad factors that contribute to the Only the United States uses life-without-possibility- exceptionally high rate of incarceration in the U.S. The of-parole sentences; elsewhere, even murderers first and most obvious reason is the high rate of violent sentenced to life terms are eligible for parole crime in the U.S., particularly gun-related crime. In or executive-branch commutation, and they are 2004, the homicide rate in the U.S. was nearly 3.5 times typically released after 8 to 12 years. Only in the greater than the western European average;3 in 2001, the United States are prison sentences longer than 1 rate of homicides involving a firearm was over five times or 2 years common; in most countries, fewer than the western European average.4 It makes sense that a 5 percent of sentences are for a year or longer.5

Table 1: In 2004, the average felony sentence for those serving State Corrections Funding, 2007 in a state prison was nearly 5 years.6 Two crimes that have similar definitions regardless of country and are therefore appropriate to compare internationally are burglary (breaking in and entering) and robbery (seizing 7 2006

Fund property through violence). A 2004 U.S. Bureau of Dollars Percent of of Percent

Millions of of Millions Justice Statistics report revealed the average sentence for Workforce, Workforce, State General General State in Corrections in Corrections State Employees Employees State burglary in the U.S. was 51.5 months, compared to 19.3 50 state total 11% $44,062 7% months in England and Wales. The average sentence Arizona 15% $895 9% for robbery in the U.S. was 85.5 months, while the same Colorado 10% $599 9% crime in England and Wales typically yielded a 40-month Idaho 8% $179 7% sentence. Comparisons with other European countries Montana 6% $142 8% show the same disparity.8 Nevada 14% $222 6% Stiff sentences are partially the result of a wave of New Mexico 8% $241 4% federal and state anticrime laws passed over the last three Utah 7% $324 7% decades. Many of these laws included strict sentencing Wyoming 7% $82 4% guidelines, including federal mandatory minimums for Source: “One in 100: Behind Bars in America 2008,” Pew Center on the States, 2008. drug crimes that emerged from the “war on drugs,” as well as the notorious “three strikes you’re out” Figure 1: laws in California and similar state laws passed Direct Expenditures by Criminal Justice Function, All Levels of Government, United States, across the nation.9 Since the 1990’s, many of these 1982-2005. In Billions of Dollars rigid guidelines have been eased, and many past 100 supporters of strict crime laws are rethinking their position. But in general, the public continues to encourage judges, prosecutors, and politicians to 80 demonstrate a record of being “tough on crime.”10 Notably, the U.S. is one of only a few countries Corrections that elect public prosecutors and state court judges, Judicial 60 Police subjecting them to the whims of public opinion. In a 1998 article, Eric Schlosser suggested another cause for the incarceration rate in the 40 U.S.—the prison industrial complex.11 The Billions of Dollars corrections industry is big business in America; new prisons mean income for construction 20 companies, employment for prison guards and business for vendors who supply correctional facilities with everything from food to pay phones. 0 Data from 1982 to 2005 demonstrate the growth of the prison industry, showing expenditures for 1982 1985 1990 1995 2000 2005 police, corrections facilities, and judicial expenses Source: Bureau of Justice Statistics growing 396 percent, 619 percent, and 474 percent,

32 The 2009 Colorado College State of the Rockies Report Card - Incarceration The 2009 Colorado College State of the Rockies Report Card - Incarceration 33

Table 2: 6.8 percent of their general funds on corrections operations. Table 1 Average Length of Imprisonment summarizes the Pew Center findings on incarceration data for each by Offense Category, United States, state in the Rockies region, as well as the 50-state totals.13 Figure 1 2007 illustrates the growth of direct expenditures on criminal justice in the US at all levels of government and Figure 2 shows the breakdown of such expenditures on police, corrections, and judicial functions. Critics of the Pew Center report have claimed the analysis is incomplete, as it presents the costs of incarceration, but not the Grading

Weight for for Weight benefits. A 2004 report by economist Steven Levitt concluded that Mean Months Primary Offense Primary high prison populations are one of four factors that had a positive Murder 258.3 14.1 correlation with the decrease in crime throughout the 1990’s (the Sexual Abuse 97.3 5.31 others were the increased police force, the receding crack epidemic, Robbery 86.5 4.73 and the legalization of abortion). Levitt’s findings controlled for Assault 37.4 2.04 Burglary/B&E 20.7 1.13 Figure 2: Larceny 18.3 1.00 Direct expenditure on criminal justice (police, corrections, judicial) by level of government, United States, 1982-2005. In Billions of Dollars Auto Theft 69.7 3.81 Arson 83.5 4.56 120 Source: Table 7, United States Sentencing Commission Statis- tical Information Packets FY 2007

100 Local 12 respectively. Increasingly, the prisons State themselves are operated by private entities, Federal which states and the federal government pay by 80 the inmate, thus encouraging maximum capacity. Just as profit-seeking behavior among military 60 vendors encourages continued growth in military

spending, consequently fueling the military Billions of Dollars industrial complex, Schlosser has suggested 40 that lobbyists, politicians, and businesspeople work together to ensure that the prison business 20 continues to flourish. While the correctional industry means profit for some, the Pew Center report mentioned 0 earlier suggested that the costs are cripplingly high for already cash-strapped states. According to 1982 1985 1990 1995 2000 2005 the report, states must spend on average $23,000 Source: Bureau of Justice Statistics per inmate per year, and collectively, states spend other possible inputs, including tougher gun control laws, innovative policing Table 3: Crime Index Score, Top Ten Rockies Counties, 2007 strategies, an aging population, and economic prosperity. Strict sentencing, according to Levitt, has the duel effect of deterring would-be offenders, and locking up criminals and preventing them theft Index Arson assault Robbery Burglary

Composite Composite for continued infractions. According to Aggravated Aggravated Murder and Murder Forcible rape Forcible County, State County, no negligent negligent no Larceny-theft manslaughter Motor vehicle vehicle Motor social scientist James Q. Wilson, “the Pima, AZ 18 88 214 463 2,643 9,237 1,794 121 22,291 typical criminal commits from 12 to 16 Maricopa, AZ 25 30 94 701 1,734 3,936 1,028 69 12,517 crimes a year (not counting drug offenses). Sevier, UT 0 1 0 8 33 6,371 970 56 10,380 Locking him/her up spares society those Pinal, AZ 11 39 42 206 1,067 3,176 836 24 8,659 crimes.”14 Levitt’s study, and others, have Adams, CO 6 41 74 316 796 1,907 680 45 6,901 suggested that the high incarceration rate El Paso, CO 2 57 35 922 784 1,607 354 35 6,383 alone may have been responsible for up to Jefferson, CO 2 55 27 166 983 2,445 365 30 5,872 25 percent of the fall in crime throughout Mohave, AZ 9 4 22 169 1,165 1,559 387 26 5,067 the 1990’s.15 The analysis concludes that Douglas, CO 2 60 25 97 526 2,100 120 29 3,948 even taking into account the exorbitant Salt Lake, UT 3 86 88 401 1,697 230 11 0 3,927 cost of locking up criminals, the benefits Source: Calculated From FBI Uniform Crime Report, Table 10 and United States Sentencing Commission Statistical 1617 Information Packets FY 2007, Table 7 outweighs the costs. Note: Calculation of Composite Index explained in text Hot Spots In the Rockies severity of each crime, we generated a composite crime index for each county. Despite the lofty debate over crime policy, Table 2 shows the national average sentences the reality remains—the U.S. has the highest prison and corresponding weights used in this method. Table population in the world.18 What does this mean for the 3 and Table 4 identify the Rockies counties with the Rockies? Here is a snapshot of the prison system in the highest overall per capita crime index and total crime American West, including crime rates, prison populations, index. Table 5, Table 6 and Table 7 depict the ten and law enforcement employees at the county level. Rockies counties with the highest total numbers of law enforcement employees, employees per Table 4: county square mile, and employees per Per Capita Crime Index Score, Top Ten Rockies Counties, 2007 100,000 county residents.

Table 5: Law Enforcement Employees, theft Index Index Arson

assault Top Ten Rockies Counties, 2006 Robbery Burglary Per Capita Capita Per Composite Aggravated Aggravated Murder and Murder Forcible rape Forcible County, State County, no negligent negligent no Larceny-theft manslaughter Motor vehicle vehicle Motor Esmeralda, NV 0 0 0 3 1 740 61 8 1,016 1.32 State 0 0 2 3 401 26 2 516.6 0.59 Total

Clark, ID 0 County, Officers Civilians Sevier, UT 0 1 0 8 33 6,371 970 56 10,370 0.51 Employees Daggett, UT 0 0 0 0 7 398 20 0 482.1 0.48 Maricopa, AZ 3,302 736 2,566 Harding, NM 0 0 0 0 2 215 18 0 285.8 0.35 Pima, AZ 1,338 496 842 Storey, NV 0 0 0 0 17 475 190 29 1,350 0.33 Salt Lake, UT 1,179 330 849 Sweet Grass, MT 1 1 0 6 2 769 94 6 1,188 0.31 Washoe, NV 773 418 355 Beaver, UT 0 0 2 9 17 360 327 26 1,771 0.29 Jeﬀ erson, CO 751 533 218 El Paso, CO 584 416 168 Granite, MT 0 0 0 3 7 281 52 2 502.2 0.18 Eureka, NV 0 1 0 5 9 87 18 3 195.0 0.16 Arapahoe, CO 573 396 177 Source: Calculated From FBI Uniform Crime Report, Table 10 and United States Sentencing Commission Statistical Information Adams, CO 498 348 150 Packets FY 2007, Table 7 Pinal, AZ 444 186 258 Note: Calculations for Composite Index and Per Capita Index explained in text Douglas, CO 417 272 145 Source: FBI Uniform Crime Report, Table 80 Table 6: Law Enforcement Employees by Area, Top Ten Rockies Counties, 2006 Table 7: Law Enforcement Employees per 100,000 County Residents, Top Ten Rockies Counties, 2006 miles Total Total Officers Civilians Employees 1000 square 1000 square square miles square County Area, County County, State County, Employees per per Employees Total Total Officers

Salt Lake, UT 1,179 330 849 808 1,460 Civilians residents Employees Population 2006 County 2006 County County, State County, Employees per per Employees

Jeﬀ erson, CO 751 533 218 778 965 100,000 county Carson City, NV 139 94 45 156 893 Daggett, UT 28 9 19 1,005 2,786 Arapahoe, CO 573 396 177 806 711 Esmeralda, NV 15 11 4 771 1,946 Weber, UT 379 120 259 660 575 Eureka, NV 18 12 6 1,218 1,478 Douglas, CO 417 272 145 843 495 Washington, CO 49 14 35 4,452 1,101 Boulder, CO 318 202 116 751 423 Beaver, UT 56 14 42 6,135 913 Adams, CO 498 348 150 1,198 416 Clark, ID 7 3 4 872 803 Davis, UT 228 99 129 634 360 Gilpin, CO 38 25 13 4,920 772 Maricopa, AZ 3,302 736 2,566 9,225 358 Hot Springs, WY 34 29 5 4,471 760 Source: FBI Uniform Crime Report, Table 80 Dawson, MT 59 6 53 8,406 702 Clear Creek, CO 60 27 33 8,795 682 Crime data and law enforcement employment Source: FBI Uniform Crime Report, Table 80 data were gathered from the FBI Uniform Crime Report, made up of data collected from over 17,000 The prison population for each county in the law enforcement agencies annually. However, West was gathered from the respective state departments because reporting is not mandatory, the data set is not of corrections. This data set includes not only the total comprehensive. Of Rockies counties, 214 of 281 (76 population of each facility, but also information on percent) are represented in the report. Using data from whether the state or federal government or a private entity the U.S. Sentencing Commission to indicate the relative runs the institution. Figures 3 illustrates the phenomenon of some counties “exporting” their incarceration activities

34 The 2009 Colorado College State of the Rockies Report Card - Incarceration The 2009 Colorado College State of the Rockies Report Card - Incarceration 35

Figure 3: Rockies Prison Population by County, 2008 Figure 4: State Inmate Populations in the Rockies, 2008

Legend Legend Population State Inmates 0 to 100 1 - 500 101 to 500 501 - 1,000 501 to 1,000 1,001 - 2,500 1,001 to 2,500 2,501 - 5,000 2,501 to 5000 > 5,001 >5000

Source: Compiled from individual state Department of Corrections population reports Source: compiled from individual state Department of Corrections population reports, 2008

Note: prison populations here include county facilities that have been contracted by the state and facilities operated by the respective Department of Corrections.

Figure 5: Federal Inmate Populations in the Rockies, 2008 Figure 6: Private Prison Inmate Populations in the Rockies, 2008

Littleton

Florence

Legend Legend Federal Inmates Private Inmates 1 - 500 Phoenix 1 - 500 501 - 1,000 Safford 501 - 1,000 1,001 - 2,500 1,001 - 2,500 2,501 - 5,000 2,501 - 5,000 Tucson > 5,001 > 5,001

Source: U. S. Bureau of Prisons, 2008 Source: compiled from individual state Department of Corrections population reports, 2008 to those counties “specializing” in prisons. Figures 4, 5, and org/documents/data-and-analysis/IHS-rates-05012009.pdf. Accessed 2/9/09. 6 show locations of state, federal and private prisons and the 4 Eighth United Nations Survey of Crime Trends and Operations of Criminal Justice Systems, approximate size of their respective inmate populations. It Covering the Period 2001–2002, UN Office on Drugs and Crime, Division for Policy is clear from these maps where in the Rockies incarceration Analysis and Public Affairs, Table 2.4. http://www.unodc.org/pdf/crime/eighthsurvey/8sv. pdf. Accessed 2/9/09. activities represent significant economic drivers for local 5 Tonry, Michael, “Why Are U.S. Incarceration Rates so High?” Crime & Delinquency Vol. economies. 45 No. 4, October 1999, p. 419-437; 419-420. 6 Bureau of Justice Statistics, Criminal Sentencing Summary Findings. http://www.ojp. usdoj.gov/bjs/sent.htm. Accessed 2/9/09. What Next for Rockies Sentencing and Incarceration? 7 Farrington, David P., et al. “Cross-National Studies in Crime and Justice.” Bureau of Justice Statistics, September 2004, pg. viii. 8 Ibid. Crime and incarceration policies continue to be 9 Cannon, Carl M., “Petty Crime, Outrageous Punishment,” Readers Digest, available at fiercely debated issues nationwide, but discussion at the state http://www.rd.com/your-america-inspiring-people-and-stories/petty-crime-outrageous- punishment/article28714.html. Accessed 2/9/09. and regional level is also important. States must explore the 10 Liptak, Adam, “Inmate County Dwarfs other Nations,’” New York Times 4/23/08. relationship between high incarceration and crime rates, and 11 Schlosser, Eric, “The Prison Industrial Complex,” The Atlantic December 1998. http:// www.theatlantic.com/doc/199812/prisons. Accessed 2/9/09. the cost of accommodating inmates in both state and private 12 Bureau of Justice Statistics, Expenditure and Employment Summary Findings. http:// prisons. The West has come a long way since the times of www.ojp.usdoj.gov/bjs/eande.htm. Accessed 2/9/09. 13 Warren, Jennifer, et al., “One in 100: Behind Bars in America 2008,” The Pew Center frontier lawlessness, posses, and hanging judges that now only on the States, 2008. occupy history books, the silver screen, and our imaginations. 14 Wilson, James Q., “Do the Time, Lower the Crime,” LA Times, 3/30/08. 15 Ibid. But that does not mean the issue of justice in the Rockies 16 Levitt, Steven D., “Understanding Why Crime Fell in the 1990: Four Factors that Explain is settled; policies continue to evolve every time state laws the Decline, and Six Factors that Do not,” Journal of Economic Perspective 18(1), Winter change and judges and prosecutors are elected. Ultimately, 2004. 17 For a study opposing Levitt’s study, see Mitchell B. Chamlin, Andrew J. Myer, Beth A. the state of crime and punishment in the West reflects the Sanders, & John K. Cochran, “Abortion as Crime Control: A Cautionary Tale,” Criminal prevailing opinion of the region’s citizens. Justice Policy Review 19 (2008), 135-152. 18 Roy Walmsley, World Prison Population List (seventh edition), King’s College International Centre for Prison Studies. London (2007). 1 Warren, Jennifer, et al., “One in 100: Behind Bars in America 2008,” The Pew Center on the States, 2008. 2 Ibid. 3 “International Homicide Statistics,” UN Office on Drugs and Crime, http://www.unodc.

Prison Data by Rockies County Source: individual State Department of Corrections Population Reports (2008); FBI Uniform Crime Report, Table 80 (2006); and FBI Uniform Crime Report, Table 10 and United States Sentencing Commission Statistical Information Packets FY 2007, Table 7. “ - ” indicates no data available

County County 2008 2008 Index Index Index Index employees employees Total law law Total Composite employees employees Total law law Total population Composite population adjusted for for adjusted enforcement enforcement adjusted for for adjusted Violent crime Violent enforcement enforcement tion May/June May/June tion Violent crime Violent Prison Popula- Prison Property crime Property tion May/June May/June tion Prison Popula- Prison Property crime Property

Apache 68 - - - - - Adams 498 - 437 3,383 6,901 0.02 Cochise 195 2,738 0 1,531 2,420 0.02 Alamosa 35 - 8 64 95 0.01 Coconino 249 - - - - - Arapahoe 573 - 246 1,740 3,461 0.01 Gila 136 - 100 559 1,062 0.02 Archuleta 45 - 29 116 234 0.02 Graham 59 2,572 243 203 784 0.02 Baca 11 - 2 2 6 0.00 Greenlee 27 - - - - - Bent 7 1,162 3 28 50 0.01 La Paz 91 - 84 417 746 0.03 Boulder 318 - 87 753 1,299 0.00 Maricopa 3,302 10,938 850 6,698 12,517 0.00 Broomfi eld ------C h a ﬀ e e 41 1,183 9 90 144 0.01

Arizona Mohave 234 1,523 204 3,111 5,067 0.03 Colorado Navajo 126 1,909 61 661 1,155 0.01 Cheyenne 10 - 0 11 11 0.01 Pima 1,338 6,228 783 13,674 22,291 0.02 Clear Creek 60 - 18 92 162 0.02 Pinal 444 10,688 298 5,079 8,659 0.04 Conejos 20 - - - - - Santa Cruz 79 - 8 368 602 0.01 Costilla 14 - - - - - Yavapai 354 - 354 1,703 3,212 0.02 Crowley 9 2,483 1 1 3 0.00 Yuma 311 2,422 215 1,577 2,911 0.01 Custer 18 - 11 42 76 0.02

36 The 2009 Colorado College State of the Rockies Report Card - Incarceration The 2009 Colorado College State of the Rockies Report Card - Incarceration 37

County

2008 County Index Index 2008 Index Index employees employees Total law law Total Composite County County population employees employees adjusted for for adjusted enforcement enforcement Total law law Total Composite Violent crime Violent population 2008 2008 tion May/June May/June tion Prison Popula- Prison Property crime Property Index Index Index adjusted for for adjusted enforcement enforcement Violent crime Violent tion May/June May/June tion Prison Popula- Prison Property crime Property employees employees employees Total law law Total law Total Composite Composite population population

adjusted for for adjusted for adjusted Minidoka 25 - 19 126 187 0.01 enforcement enforcement enforcement Violent crime Violent crime Violent tion May/June May/June tion May/June tion Prison Popula- Prison Popula- Prison Property crime Property crime Property Musselshell 7 - - - - - Nez Perce 36 - 8 83 186 0.00 Park 15 - 20 77 154 0.01 Delta 56 463 15 150 265 0.01 San Juan 4 - 4 22 33 0.06 Oneida 13 - 3 31 78 0.02 Petroleum 1 - - - - - Denver - 1,271 - - - - San Miguel 37 - 2 42 58 0.01 Owyhee 19 - 25 129 150 0.01 Phillips 10 - 8 69 67 0.02 Dolores 7 - 0 31 46 0.03 Sedgwick 8 - 3 24 45 0.02 Payette 33 - 16 51 197 0.01 Pondera 15 - - - - - Douglas 417 - 184 2,746 3,948 0.01 Summit 74 - 14 552 626 0.02 Power 18 - 7 54 97 0.01 Powder 8 - - - - - Eagle 83 - 38 487 642 0.01 Teller 87 - 18 103 196 0.01 Idaho Shoshone 31 - 29 141 161 0.01 River Elbert 36 - - - - - Washington 49 - 7 37 63 0.01 Colorado Teton 17 - 8 54 201 0.03 Powell 16 1,400 15 155 128 0.02 El Paso 584 - 1,016 2,745 6,383 0.01 Weld 255 - 137 1,186 2,140 0.01 Twin Falls 62 - 28 226 226 0.00 Prairie 3 - - - - - Fremont 70 7,732 17 216 319 0.01 Yuma 16 - 2 18 25 0.00 Valley 27 - 28 133 344 0.04 Ravalli 60 - - - - - Garfi eld 110 187 62 311 580 0.01 Ada 339 4,345 - - - - Washington 17 - 8 33 162 0.02 Richland 13 - - - - - Gilpin 38 - 6 2 14 0.00 Adams 14 - 3 40 13 0.00 Beaverhead 8 - 8 42 54 0.01 Roosevelt 12 - 7 30 96 0.01 Grand 49 - 16 201 264 0.02 Bannock 71 301 19 222 165 0.00 Big Horn 27 - 56 232 136 0.01 Rosebud 24 - 19 44 250 0.03 Bear Lake 12 - 1 31 215 0.03 Gunnison 26 - 14 33 76 0.01 Blaine 11 - 16 35 86 0.01 Sanders 21 - 20 151 102 0.01 Benewah 16 - 9 19 64 0.01 Montana Hinsdale 5 - 0 3 3 0.00 Broadwater 26 - 12 181 351 0.08 Sheridan 7 - 1 17 52 0.01 Huerfano 20 754 9 110 145 0.02 Bingham 51 - - - - - Carbon 12 - 1 33 54 0.01 Silver Bow 95 - 149 992 681 0.02 Jackson 8 - 1 6 11 0.01 Blaine 32 - 12 51 65 0.00 Carter 3 - - - - - Stillwater 7 - 3 24 35 0.00 Jeﬀ erson 751 1,188 250 3,793 5,872 0.01 Boise 15 - 4 114 88 0.01 Cascade 129 151 - - - - Sweet Grass 6 - 8 30 1,188 0.31 Kiowa 5 - - - - - Bonner 57 - 61 575 451 0.01 Chouteau 18 - 3 19 220 0.04 Teton 9 - 9 52 48 0.01 Kit Carson 19 784 - - - - Bonneville 81 - - - - - Custer 7 - - - - - Toole 19 508 18 64 96 0.02 Lake 17 - 21 22 84 0.01 Boundary 18 - 5 72 609 0.06 Daniels 5 - - - - - Treasure 2 - - - - - La Plata 114 - 25 285 419 0.01 Butte 10 - 2 9 58 0.02 Dawson 59 143 8 74 67 0.01 Valley 16 - - - - - Larimer 398 - 104 1,347 2,186 0.01 Camas 5 - 0 5 12 0.01 Deer Lodge 17 - 34 102 128 0.01 Wheatland 12 - - - - - Las Animas 37 477 - - - - Canyon 143 - 74 773 511 0.00 Wibaux 3 - - - - - Colorado Fallon 3 - - - - - Caribou 14 - 2 50 886 0.12 County County Lincoln 19 936 - - - - Fergus 23 - 6 36 99 0.01 Yellowstone 158 170 36 666 316 0.00 2008 2008 Index Index Index Index Logan 47 2,512 12 56 115 0.01 Cassia 51 - 48 532 266 0.01 Flathead 112 - - - - - Churchill 48 - 52 295 281 0.01 employees employees Total law law Total Composite employees employees Total law law Total population Composite population

adjusted for for adjusted Clark 7 - 2 18 517 0.59

enforcement enforcement Mesa 206 - 58 1,580 2,459 0.02

adjusted for for adjusted Clark - 7,252 - - - - Violent crime Violent enforcement enforcement tion May/June May/June tion Gallatin 81 - 51 401 287 0.00 Violent crime Violent Prison Popula- Prison Property crime Property tion May/June May/June tion Prison Popula- Prison Property crime Property

Mineral 7 - - - - - Idaho Clearwater 26 533 10 93 54 0.01 Garfi eld 4 - - - - - Douglas 122 - 87 1,008 1,911 0.04 Apache 68 - - - - - Adams 498 - 437 3,383 6,901 0.02 Moﬀ at 37 - 10 31 62 0.00 Custer 14 - - - - - Glacier 16 - 24 43 793 0.06 Elko 69 270 19 192 421 0.01 Cochise 195 2,738 0 1,531 2,420 0.02 Alamosa 35 - 8 64 95 0.01 Montana Montezuma 56 - 28 189 301 0.01 Elmore 39 - 9 93 162 0.01 Golden 2 - - - - - Esmeralda 15 - 3 6 1,016 1.32 Arapahoe 573 - 246 1,740 3,461 0.01 Coconino 249 - - - - - Montrose 100 - 20 189 339 0.01 Franklin 12 - 3 38 106 0.01 Valley Eureka 18 - 6 24 195 0.16 Archuleta 45 - 29 116 234 0.02 Gila 136 - 100 559 1,062 0.02 Morgan 58 189 0 78 116 0.00 Fremont 24 220 10 92 79 0.01 Granite 9 - 3 33 502 0.18 Humboldt 39 138 51 49 132 0.01 Baca 11 - 2 2 6 0.00 Graham 59 2,572 243 203 784 0.02 Otero 22 - 27 87 186 0.01 Gem 23 - 9 32 138 0.01 Hill 27 - 23 179 119 0.01 Lander 29 - 43 104 204 0.04 Bent 7 1,162 3 28 50 0.01 Greenlee 27 - - - - - Ouray 8 - - - - - Gooding 18 - 23 56 182 0.01 Jeﬀ erson 21 - 20 46 102 0.01 Lincoln 27 214 4 46 75 0.02

Boulder 318 - 87 753 1,299 0.00 Nevada La Paz 91 - 84 417 746 0.03 Park 76 - 23 57 162 0.01 Idaho 31 399 26 75 173 0.01 Judith Basin 5 - - - - - Lyon 110 75 85 728 530 0.01 Broomfi eld ------Maricopa 3,302 10,938 850 6,698 12,517 0.00 Phillips 3 - - - - - Jeﬀ erson 28 - 19 177 179 0.01 Lake 51 - 75 340 459 0.02 Mineral 20 - 7 46 116 0.02 C h a ﬀ e e 41 1,183 9 90 144 0.01

Arizona Mohave 234 1,523 204 3,111 5,067 0.03 Jerome 21 - 16 117 304 0.02 Colorado Pitkin 39 - 11 147 220 0.02 Lewis and 68 - 45 374 256 0.00 Nye 143 141 124 936 1,455 0.04 Cheyenne 10 - 0 11 11 0.01 Clark Navajo 126 1,909 61 661 1,155 0.01 Prowers 32 - 9 38 66 0.00 Kootenai 134 - 102 1,060 778 0.01 Pershing 20 1,638 73 64 276 0.04 Clear Creek 60 - 18 92 162 0.02 Liberty 10 - - - - - Pima 1,338 6,228 783 13,674 22,291 0.02 Pueblo 278 736 45 1,519 1,871 0.01 Latah 38 - 20 185 1,092 0.03 Storey 22 - 0 65 1,350 0.33 Conejos 20 - - - - - Lincoln 23 - 29 238 513 0.03 Pinal 444 10,688 298 5,079 8,659 0.04 Rio Blanco 24 - - - - - Lemhi 6 - 5 23 172 0.02 Washoe 773 102 199 1,631 1,188 0.00 Costilla 14 - - - - - McCone 4 - - - - - Santa Cruz 79 - 8 368 602 0.01 Rio Grande 24 - 4 30 51 0.00 Lewis 11 - 4 24 48 0.01 White Pine 26 1,258 39 202 233 0.03 Crowley 9 2,483 1 1 3 0.00 Madison 15 - 6 57 450 0.06 Yavapai 354 - 354 1,703 3,212 0.02 Routt 42 - 26 78 141 0.01 Lincoln 7 - 5 11 49 0.01 Carson City 139 1,619 195 1,247 1,560 0.03 Custer 18 - 11 42 76 0.02 Meagher 4 - - - - - Yuma 311 2,422 215 1,577 2,911 0.01 Saguache 18 - 3 23 35 0.00 Madison 32 - 10 93 72 0.00 Bernalillo 316 0 821 2,556 3,517 0.01 Mineral 20 - 27 25 325 0.08 NM Catron 10 - - - - - Missoula 162 139 - - - - County

adjusted for for adjusted for adjusted Minidoka 25 - 19 126 187 0.01 enforcement enforcement enforcement Violent crime Violent crime Violent tion May/June May/June tion May/June tion Prison Popula- Prison Popula- Prison Property crime Property crime Property Musselshell 7 - - - - - Nez Perce 36 - 8 83 186 0.00 Park 15 - 20 77 154 0.01 Delta 56 463 15 150 265 0.01 San Juan 4 - 4 22 33 0.06 Oneida 13 - 3 31 78 0.02 Petroleum 1 - - - - - Denver - 1,271 - - - - San Miguel 37 - 2 42 58 0.01 Owyhee 19 - 25 129 150 0.01 Phillips 10 - 8 69 67 0.02 Dolores 7 - 0 31 46 0.03 Sedgwick 8 - 3 24 45 0.02 Payette 33 - 16 51 197 0.01 Pondera 15 - - - - - Douglas 417 - 184 2,746 3,948 0.01 Summit 74 - 14 552 626 0.02 Power 18 - 7 54 97 0.01 Powder 8 - - - - - Eagle 83 - 38 487 642 0.01 Teller 87 - 18 103 196 0.01 Idaho Shoshone 31 - 29 141 161 0.01 River Elbert 36 - - - - - Washington 49 - 7 37 63 0.01 Colorado Teton 17 - 8 54 201 0.03 Powell 16 1,400 15 155 128 0.02 El Paso 584 - 1,016 2,745 6,383 0.01 Weld 255 - 137 1,186 2,140 0.01 Twin Falls 62 - 28 226 226 0.00 Prairie 3 - - - - - Fremont 70 7,732 17 216 319 0.01 Yuma 16 - 2 18 25 0.00 Valley 27 - 28 133 344 0.04 Ravalli 60 - - - - - Garfi eld 110 187 62 311 580 0.01 Ada 339 4,345 - - - - Washington 17 - 8 33 162 0.02 Richland 13 - - - - - Gilpin 38 - 6 2 14 0.00 Adams 14 - 3 40 13 0.00 Beaverhead 8 - 8 42 54 0.01 Roosevelt 12 - 7 30 96 0.01 Grand 49 - 16 201 264 0.02 Bannock 71 301 19 222 165 0.00 Big Horn 27 - 56 232 136 0.01 Rosebud 24 - 19 44 250 0.03 Bear Lake 12 - 1 31 215 0.03 Gunnison 26 - 14 33 76 0.01 Blaine 11 - 16 35 86 0.01 Sanders 21 - 20 151 102 0.01 Benewah 16 - 9 19 64 0.01 Montana Hinsdale 5 - 0 3 3 0.00 Broadwater 26 - 12 181 351 0.08 Sheridan 7 - 1 17 52 0.01 Huerfano 20 754 9 110 145 0.02 Bingham 51 - - - - - Carbon 12 - 1 33 54 0.01 Silver Bow 95 - 149 992 681 0.02 Jackson 8 - 1 6 11 0.01 Blaine 32 - 12 51 65 0.00 Carter 3 - - - - - Stillwater 7 - 3 24 35 0.00 Jeﬀ erson 751 1,188 250 3,793 5,872 0.01 Boise 15 - 4 114 88 0.01 Cascade 129 151 - - - - Sweet Grass 6 - 8 30 1,188 0.31 Kiowa 5 - - - - - Bonner 57 - 61 575 451 0.01 Chouteau 18 - 3 19 220 0.04 Teton 9 - 9 52 48 0.01 Kit Carson 19 784 - - - - Bonneville 81 - - - - - Custer 7 - - - - - Toole 19 508 18 64 96 0.02 Lake 17 - 21 22 84 0.01 Boundary 18 - 5 72 609 0.06 Daniels 5 - - - - - Treasure 2 - - - - - La Plata 114 - 25 285 419 0.01 Butte 10 - 2 9 58 0.02 Dawson 59 143 8 74 67 0.01 Valley 16 - - - - - Larimer 398 - 104 1,347 2,186 0.01 Camas 5 - 0 5 12 0.01 Deer Lodge 17 - 34 102 128 0.01 Wheatland 12 - - - - - Las Animas 37 477 - - - - Canyon 143 - 74 773 511 0.00 Wibaux 3 - - - - - Colorado Fallon 3 - - - - - Lincoln 19 936 - - - - Caribou 14 - 2 50 886 0.12 Fergus 23 - 6 36 99 0.01 Yellowstone 158 170 36 666 316 0.00 Logan 47 2,512 12 56 115 0.01 Cassia 51 - 48 532 266 0.01 Flathead 112 - - - - - Churchill 48 - 52 295 281 0.01 Mesa 206 - 58 1,580 2,459 0.02 Clark 7 - 2 18 517 0.59 Gallatin 81 - 51 401 287 0.00 Clark - 7,252 - - - -

Mineral 7 - - - - - Idaho Clearwater 26 533 10 93 54 0.01 Garfi eld 4 - - - - - Douglas 122 - 87 1,008 1,911 0.04 Moff at 37 - 10 31 62 0.00 Custer 14 - - - - - Glacier 16 - 24 43 793 0.06 Elko 69 270 19 192 421 0.01 Montana Montezuma 56 - 28 189 301 0.01 Elmore 39 - 9 93 162 0.01 Golden 2 - - - - - Esmeralda 15 - 3 6 1,016 1.32 Montrose 100 - 20 189 339 0.01 Franklin 12 - 3 38 106 0.01 Valley Eureka 18 - 6 24 195 0.16 Morgan 58 189 0 78 116 0.00 Fremont 24 220 10 92 79 0.01 Granite 9 - 3 33 502 0.18 Humboldt 39 138 51 49 132 0.01 Otero 22 - 27 87 186 0.01 Gem 23 - 9 32 138 0.01 Hill 27 - 23 179 119 0.01 Lander 29 - 43 104 204 0.04 Ouray 8 - - - - - Gooding 18 - 23 56 182 0.01 Jeff erson 21 - 20 46 102 0.01 Lincoln 27 214 4 46 75 0.02 Nevada Park 76 - 23 57 162 0.01 Idaho 31 399 26 75 173 0.01 Judith Basin 5 - - - - - Lyon 110 75 85 728 530 0.01 Phillips 3 - - - - - Jeff erson 28 - 19 177 179 0.01 Lake 51 - 75 340 459 0.02 Mineral 20 - 7 46 116 0.02 Pitkin 39 - 11 147 220 0.02 Jerome 21 - 16 117 304 0.02 Lewis and 68 - 45 374 256 0.00 Nye 143 141 124 936 1,455 0.04 Clark Prowers 32 - 9 38 66 0.00 Kootenai 134 - 102 1,060 778 0.01 Pershing 20 1,638 73 64 276 0.04 Liberty 10 - - - - - Pueblo 278 736 45 1,519 1,871 0.01 Latah 38 - 20 185 1,092 0.03 Storey 22 - 0 65 1,350 0.33 Lincoln 23 - 29 238 513 0.03 Rio Blanco 24 - - - - - Lemhi 6 - 5 23 172 0.02 Washoe 773 102 199 1,631 1,188 0.00 McCone 4 - - - - - Rio Grande 24 - 4 30 51 0.00 Lewis 11 - 4 24 48 0.01 White Pine 26 1,258 39 202 233 0.03 Madison 15 - 6 57 450 0.06 Routt 42 - 26 78 141 0.01 Lincoln 7 - 5 11 49 0.01 Carson City 139 1,619 195 1,247 1,560 0.03 Meagher 4 - - - - - Saguache 18 - 3 23 35 0.00 Madison 32 - 10 93 72 0.00 Bernalillo 316 0 821 2,556 3,517 0.01 Mineral 20 - 27 25 325 0.08 NM Catron 10 - - - - - Missoula 162 139 - - - -

38 The 2009 Colorado College State of the Rockies Report Card - Incarceration The 2009 Colorado College State of the Rockies Report Card - Incarceration 39

County County 2008 2008 Index Index Index employees employees employees Total law law Total law Total Composite Composite population population adjusted for for adjusted for adjusted enforcement enforcement enforcement Violent crime Violent crime Violent tion May/June May/June tion May/June tion Prison Popula- Prison Popula- Prison Property crime Property crime Property

Chaves 50 300 35 425 328 0.01 Juab 24 4 - - - - Cibola 14 2,021 50 130 3,344 0.12 Kane 24 10 4 40 140 0.02 Colfax 12 129 - - - - Millard 48 45 20 304 368 0.03 Curry 14 - - - - - Morgan 13 - - - - - De Baca ------Piute 3 - - - - - Dona Ana - 690 - - - - Rich 10 - 1 50 31 0.01 Eddy 56 - 63 382 663 0.01 Salt Lake 1,179 - 578 9,038 3,927 0.00 Grant 74 - 7 96 201 0.01 San Juan 35 67 3 32 53 0.00 Guadalupe - 588 - - - - Sanpete 24 1,379 - - - -

Harding - - 0 2 286 0.35 Utah Sevier 62 65 9 159 10,380 0.51 Hidalgo ------Summit 95 31 18 642 208 0.01 Lea - 1,244 58 416 418 0.01 Tooele 83 - 14 184 268 0.00 Lincoln ------Uintah 49 31 57 259 881 0.03 Los Alamos ------Utah 357 - 32 524 429 0.00 Luna 32 - - - - - Wasatch 40 51 12 191 395 0.02 McKinley 42 - 117 299 399 0.01 Washington 151 124 9 201 615 0.00 Mora 10 - 6 16 375 0.07 Wayne 5 - 11 148 222 0.09

New Mexico Otero 44 - - - - - Weber 379 53 48 1,056 623 0.00 Quay 8 - - - - - Albany 62 - 6 60 1,044 0.03 Rio Arriba 29 - 44 85 182 0.00 Big Horn 52 18 - - - - Roosevelt 14 - - - - - Campbell 21 - 46 290 174 0.00 Sandoval 50 - 29 164 226 0.00 Carbon 20 541 1 41 71 0.00 San Juan 110 - 269 1,074 1,131 0.01 Converse 59 - 1 43 325 0.03 San Miguel ------Crook 34 - 5 45 67 0.01 Santa Fe - 981 199 1,005 2,435 0.02 Fremont 19 212 9 183 128 0.00 Sierra 15 - 7 63 146 0.01 Goshen 13 18 37 83 141 0.01 Socorro 12 - 25 68 409 0.02 Hot Springs 34 - 0 29 191 0.04 Taos 22 - - - - - Johnson 16 - 3 30 105 0.01 Torrance 11 207 - - - - Laramie 13 - 50 516 314 0.00 Union 3 - - - - - Lincoln 13 - 9 133 77 0.00 Valencia - 1,200 145 1,329 1,208 0.02 Natrona 39 - 15 416 694 0.01 Wyoming Beaver 56 351 11 76 1,771 0.29 Niobrara 14 192 1 10 122 0.05 Box Elder 82 28 6 221 76 0.00 Park 52 - 28 71 402 0.02 Cache 142 57 26 509 246 0.00 Platte 10 4 2 25 31 0.00 Carbon 40 6 7 166 284 0.01 Sheridan 25 - 12 101 105 0.00 Daggett 28 63 0 13 482 0.48 Sublette 37 - 31 234 146 0.02 Davis 228 101 - - - - Sweetwater 40 - 22 238 245 0.01 Utah Duchesne 51 94 6 141 221 0.01 Teton 41 - 7 125 300 0.02 Emery 41 - 8 107 71 0.01 Uinta 36 - 7 172 263 0.01 Garfi eld 28 85 - - - Washakie 10 3 8 7 127 0.02 Grand 30 2 8 100 211 0.02 Weston 15 237 1 8 204 0.03 Iron 80 - 17 158 180 0.00